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Student Economic Review, Vol. 18, 2004
MERCANTILISM AND THE ASIAN DEVELOPMENT MODEL
BY EIMEAR SEXTON
Senior Sophister
In this essay Eimear Sexton discusses the mercantilist nature of
the Asian Tigers’ institutions and policies since the 1960s as
well as examines their governments’ position regarding balance
of trade, balance of payments on current account and exchange
rate regime. After looking at the Asian Crisis of 1997, she goes
on to conclude that mercantilist policies of the Asian
Development model are sound policy prescriptions for other
developing economies.
Introduction
While the assertion by a Harvard expert on Asian Studies that “there are at least
three models of East Asian development” (O’Hearn, 1998) is generally seen as
understated, there are a number of common characteristics of economic
development present in most of the newly industrialised countries of East and
Southeast Asia. These characteristics together form what has been termed the ‘Asian
development model’.
There has been phenomenal growth in this region over the past number of
decades. A glance at Asian tiger growth rates over the 30 year period from 1960 is
staggering, and when put in the context of OECD growth rates of 2-3% over the
same period, the significance of the statistics are highlighted. While growth in the
Asian economies then slowed, annual growth rates of 5.2% to 8.3% in the first half
of the 1990s are still quite impressive (Numazaki, 1998).
Table 1: Average annual GDP growth rate
South Korea
Taiwan
Singapore
Hong Kong
1960-70
8.5
9.2b
8.8
10.0
1970-80
8.7
9.7
9.0
9.5
Source: Chowdhury and Islam, 1993.
195
1980-89
9.2
8.0
6.9
6.3
196
MERCANTILISM AND THE ASIAN DEVELOPMENT MODEL
The four Southeast Asian nations grew at an average annual rate of 6-7%
between 1965 and 1980 and, excluding the Phillipines. These economies grew at 57% per annum during the 1980s. Late industrialiser China grew at 6.9% on average
for the period 1965-1980 and 9.7% for the 1980s.
While neither ‘East-Asian’ nor ‘Southeast Asian’ accurately reflects the
regional distribution of the countries being considered in this paper, for the purpose
of clarity, they will be collectively referred to as the ‘Asian Economies’. They
include: Japan, South Korea, Taiwan, Hong Kong, Singapore, Thailand, Malaysia,
Indonesia, the Philippines and China. Similarities of both policies and structures are
readily observed across the Asian Economies, although many are at different stages
of development.
There have been three waves of industrialisation in the region. Japan was
the first non-Western economy to industrialise, with economic growth taking off
soon after the end of World War II. Following Japan, the East Asian tigers of South
Korea, Taiwan, Singapore and Hong Kong emerged in the early 1960s. 1 In later
years rapid economic growth occurred in Thailand, Indonesia, Malaysia, the
Philippines,2 and finally China.
The development of the region as a whole has largely been due the
industrialisation of Japan. As Japan developed over the latter part of the 20th century,
and moved its production up the value chain, in other words, producing more
technically advanced and value added goods, it began first to import raw materials
from its Asian neighbours and then to outsource lower value added elements of the
production process. This process ‘stimulated… economic growth in less developed
nations along the western Pacific Rim’ (Hill and Fujita, 1995). What emerged was
an inverted ‘V’ or what Akamatsu Kaname (O’Hearn, 1998) calls the ‘flying geese’
pattern of regional development of the Asian economies with Japan at the forefront
(See Figure 1).
These regional patterns also map out the balance of economic power, with
core, technology rich Japan holding the most power in the region to attract high
value industry.
1
2
These four will be called the ‘East Asian Economies’
These four will be called the ‘Southeast Asian Economies’
EIMEAR SEXTON
197
Figure 1: Pattern of Asian Regional Economic Development
Core, Japan
High-tech, high value added
activities
First Asian industrialiser
Source:
Semi-periphery,
East Asian
Economies
Medium-tech,
moderately high
value added
activities.
Newly
Industrialising
Countries
Periphery,
Southeast Asian
Economies &
China.
Low-tech, low
value
added,
labour intensive
activities
Most recent
industrialisers
O’Hearn, 1998
It is my hypothesis that the policies and structures present in the Asian
Economies since the 1960s are largely mercantilistic. The model of Asian
development is undeniably similar in spirit, even if not by intent, to the policies and
structures which dominated economic thought in Western Europe from the Middle
Ages, nearing 1600, to the publishing of Adam Smith’s Wealth of Nations (1776). In
evaluating the weight of this proposal, I shall examine the prevalence of policies and
structures present in the East Asian region, which mirror those present in the
mercantile era, the notion of economic power as political power, the support of such
policies by structures held in place by the ‘strong’ or ‘developmental’ nation state
and policies towards trade including import-substituting industrialisation and exportled growth. I shall also discuss the desire for balance of trade and current account
surpluses and foreign exchange reserves and the 1997 financial crisis in Asia. Based
on my conclusions, I shall comment on the validity of mercantilist policies as policy
prescriptions for emerging economies.
Economic Power as Political Power and Structures of the strong developmental
nation state
In his book entitled Mercantilism, Professor Heckscher (1935) described
mercantilism as a uniform body of doctrine built up on five different parts, in which
“The Pursuit of Power” was the most important. In his view, economic measures
were the primary weapon used to secure political unification and national power.
This has been the defining feature of Asian economic and political policy.
198
MERCANTILISM AND THE ASIAN DEVELOPMENT MODEL
Japan’s imperial ambitions at the turn of the 20th century are well known.
The Meji era, brought about by the death of the emperor in 1912, was marked by
huge government domestic and overseas investments and defence programmes in an
effort to increase its political power. During the following Taisho era, in an effort to
expand its influence in China, Japan declared war on Germany 3 and occupied
German-leased northern territories in China and its islands in the Pacific. Japan’s
power in Asia grew with the demise of the tsarist regime in Russia and the 1917
Bolshevik Revolution. The year 1919 saw Japan sitting among the ‘Big Five’
powers at the Versailles Peace Conference, a confirmation of its rise in political
significance. The extent of Japan’s ambitions were shown by their invasion of China
in 1931 and the now infamous attack against US forces at Pearl Harbour in
December 1941. However, following 14 years of war, their humiliating defeat and
the annihilation of Hiroshima and Nagasaki in 1945, the death toll in Japan had risen
to over 3 million. The country was in ruins and a huge occupation army of US and
British soldiers remained in Japan as part of the surrender agreement.
This put paid to Japan’s pursuit of power through militaristic means. After
WWII Japan re-oriented its policy towards the attainment of power and influence in
the world through the build up of economic might. Japan had effectively been thrust
towards the mercantilist ideal of “state making and national economy making at the
same time” (Schmoller, 1896). It was through economic growth that Japan’s power
would be realised. By the 1970s, Japan had achieved so much progress that it was
predicted to overtake the US as the world’s number one economy.4
Most pieces of mercantilist policy that were put forward identified the
merchant’s profit with the national good. This was based on the perceived link
between trade and power – that ‘trade’ tended to ‘follow power’ (Magnusson, 1994).
This perceived connection prompted Child to stress in 1693 “…that Profits and
Power ought jointly to be considered” (Magnusson, 1994). With the pursuit of the
power of the nation state at the forefront of public policy, and economic growth
through trade the means to attain this power, state intervention was an essential part
of mercantilist doctrine. The notion of the strong nation state has been at the heart of
the Asian development model. Alvin So (1995) effectively sums up the regional
mentality towards Asian economic governance when he says that “states have a
strategic role to play in taming international and domestic forces and harnessing
them to national ends.”
While neo-classical economists argue that East Asian economic success has
been based on its relative economic efficiency in world markets, those who take
institutional approaches to economic change contend that Asian governments have
3
4
In August 1914.
See, for example, Vogel (1980) and Kahn (1970).
EIMEAR SEXTON
199
intervened, often in a market-distorting way, to ensure the prosperity of domestic
industries. While the World Bank (1993) has used the East Asian ‘miracle’
economies to extol the virtues of export-led growth paired with openness to
international markets, O’Hearn (1998) notes that a large number of experts have
argued that Asian successes were largely the result of effective state interventions,
which strategically protected key industries to build them up until they were able to
compete in export markets. The developmental role of Asian states has been
facilitated by their autonomy and independence from the pressures of social groups
and classes.
States were involved in supporting some activities while discouraging
others, or what Amsden (1989) refers to as the use of ‘carrots’ and ‘sticks’. This
involved, for example, the imposition of quantitative restrictions and tariffs on the
imports of some sectors, while other industries were exempt from such restrictions.
As development and growth took place and economies shifted towards export-led
growth, support of indigenous and desirable industries was made by direct subsidies,
enabling them to make a profit with higher than average costs and still sell at prices
lower than international market equivalents.
Interventionist policies had become so rampant during the early stages of
economic growth, that, for example, Ed Mason dubbed the Korean state “Korea
Incorporated”, arguing that the South Korean economy was like a huge corporation,
with the state as its board of directors (O’Hearn, 1998). Although the heights of the
economy were dominated by huge Chaebol, like Hyundai and Samsung, these in
turn were strategically directed by the state.
Interventionist behaviour of the type practiced in this region is largely
frowned upon in the global arena. However, Asian countries have remained largely
camouflaged from the piercing lens of Western focus for the past number of decades.
This has been the result of a long history of geopolitics that has been prevalent in
this region since the beginning of the Cold War. As front-line states in this political
war of Western capitalism versus Soviet-led communism, in addition to receiving
financial aid for accepting a Western military presence, the East Asian states
essentially exempted themselves from economic policy rules with no obvious
repercussions (Cumings, 1984; So, 1995).
The Mercantile System and its Policies Towards Trade:
Import-Substituting Industrialisation
A key element of early mercantilist industrial policy was the practice of
what is now termed Import-Substituting Industrialisation (ISI). ISI endorses the
protection of domestic industry from foreign competition behind high tariff walls
200
MERCANTILISM AND THE ASIAN DEVELOPMENT MODEL
and the provision of a range of incentives and subsidies for favoured industries. The
creation of work and employment and the nursing of industries, both as ends in
themselves and as means of strengthening the country, became the aims of state
policy at the end of the 17th and throughout most of the 18th centuries. The methods
used were tariffs and embargos on imports, prohibitions of the export of tools and
skilled craftsmen, the encouragement of the import of raw materials or of their
production at home, the supervision of the quality of products and subsidies to those
who were developing new industries.
Import substitution was used extensively as a policy for growth in Asian
economies. This type of inward-oriented strategy of economic development was
adopted in Japan in the years post WWII, in the East Asian Economies in the 1960s
and in South East Asian Economies in the 1960s and 1970s.
Import substitution policies are closely correlated with the early stages of
industrialisation in these Asian economies. Import licensing and quantitative
restrictions were the most far-reaching instruments of protectionist policy at that
time, but they also led to most abuses, both in their administration and in permitting
inefficient manufacturing enterprises to be established (ADB, 1971).
While import substitution has become almost completely redundant in the
Asian economies since the 1970s, the encouragement of home consumption is a
feature still found in many of the Asian economies, especially in the area of food
production. Japan, for example, actively and overtly pursues a policy of agricultural
protectionism. Despite the obvious cost disadvantage of maintaining agricultural
production in a country with high labour and land costs, 5 this is considered
subordinate to its desire to maintain self-sufficiency in the interest of its national
security. In 2003, Japanese rice production was supplemented by only 7.5% of total
consumption in imports in this area (of the 8,658,000 metric tons of rice consumed
in Japan in 2003, only 650,000 tons came from abroad). Similarly, China’s
modernisation began in 1978, with reform of its agricultural sector with the goal of
becoming fully self-sufficient in food production. This goal was largely reached by
the 1990s and today China, the world’s biggest consumer of rice imports less than
1% of its total consumption.
Desire for Balance of Trade and Current Account Surpluses
Mercantilists looked upon the economic process from the point of view of
the primitive stage which capitalism had reached at that time and were thus led to
identify money with capital, identifying “…precious metals as the sole constituents
of the wealth of the nation” (Viner, 1930). Professor Heckscher has given an
interesting account of the “fear of goods”, the almost fanatically exclusive concern
5
Heckscher-Olin theory, the textbook treatment of land and labour costs
EIMEAR SEXTON
201
with selling, which characterised mercantilist thought. In sharp contrast with the aim
of securing an abundance of goods, which had characterised earlier state policy, the
mercantilists thought, in the words of their greatest German representative, Johann
Joachim Becher, “that it is always better to sell goods to others than to buy goods
from others, for the former brings a certain advantage and the latter inevitable
damage” (Heckscher, 1935).
It was particularly in the sphere of foreign trade that the ‘fear of goods’
showed itself, resulting in the mercantilist search for an export surplus, a relative
surplus. Davenant, writing in 1697, argued that in domestic trade the nation in
general did not grow richer, only a change in the relative amounts of wealth of
individuals took place; but foreign trade made a net addition to a country’s wealth.
The Asian Economies have vigorously pursued a current account surplus as
a major part of its economic policy. Their generally impressive current account
surpluses have been led by the shift in policy towards export-led growth. Over the
15 year period 1970-1985, manufactured exports grew annually by more than 25%
in South Korea, Taiwan and Singapore (O’Hearn, 1998). The conventional wisdom
is that these rapidly expanding exports drove higher economic growth rates in
general. The exceptional growth over the period in question has been illustrated.
Average export growth per annum over the period 1970-1979, a strong period in
terms of economic growth in the region, is shown below:
Table 2: Average Export Growth per Annum, 1970-1979
East Asia
South East Asia
South Korea
Taiwan
Singapore
Hong Kong
Indonesia
Malaysia
Philippines
Thailand
37.9%
30.8%
28.0%
22.1%
34.9%
23.3%
17.6%
25.2%
Export-led Growth
By 1994, combined exports from the four Asian tigers, the four ‘cubs’ and
China had grown steadily to 17.3% of total world exports from 8.3% of world
exports in 1981 and 13.9% of exports in 1991. The composition of these exports has
changed over the course of development of these economies, however, evolving
from food and textile exportation in the earlier phases of development to more
manufactured, more technology reliant goods as economies mature.
202
MERCANTILISM AND THE ASIAN DEVELOPMENT MODEL
Pursuing a policy of export-led growth in Asia has not been without its
difficulties. For many of the Asian Economies, natural resources in terms of fertile
land, metal and mineral reserves have not been in large supply. For these countries,
comparative advantages were not endowed but have been built or captured over time.
However, one area in which they held a considerable advantage was in their
abundant supply of cheap labour. The condition of high-density population in a
country was strongly regarded by mercantilists as a propeller of economic growth.
Indeed, with the rise of the Netherlands as an economic power in the 18th century,
many mercantilist writers identified this as one of the sources of its increased
affluence over this period. The general lack of substantial natural resources has had
its consequences for production. The industrial strategy of export-led growth in
Asian economies has generated a double incidence of dependence (or ‘double
dependency’: Numazaki, 1998) on the United States as a substantial market for
exports and a dependence on Japan for imports as a consequence of Japanese ‘outprocessing’6.
Accumulation of Specie and Foreign Exchange Reserves
While during the mercantilist era countries accumulated stocks of gold over
time as a result of their policies to encourage balance of trade surpluses, such stocks
of wealth held by Asian financial institutions are held primarily in US dollars. Since
the collapse of the Bretton Woods accord, the US dollar has assumed the role of the
World’s international reserve currency of choice. In effect, the dollar has replaced
gold and other precious metals as the primary store of wealth for most countries.
The extent to which the Asian Economies hold reserves is well in excess of
that, which is standard in Western economies. Immediately prior to the Asian
financial crisis, in 1996, international reserves of these countries were as indicated in
Table 3.
These quantities of reserves are even more substantial when one takes into
account the huge volumes of imports such countries had, with many exporting firms
reliant on raw materials from abroad and the cross-country trading of
subcomponents in line with the vast networks of Original Equipment Manufacturers
(OEM) established in the Asian region.
6
The success of most Asian economies is based on the passing on of certain parts of the
production process through Original Equipment Manufacturer (OEM). To this end, such
economies are reliant on Japanese imports to fulfil their role in the production process
EIMEAR SEXTON
203
Table 3: International reserves immediately prior to the Asian financial crisis
Country
Japan
Taiwan
Hong Kong
Singapore
South Korea
Indonesia
Thailand
Malaysia
Philippines
China
International Reserves
(months of imports)
8.5
10.3
10.9
7.0
2.8
6.1
6.6
4.3
4.4
9.1
Source: Hong Kong Monetary Authority, (2004); CEPD for Taiwan, (2004); APEC (2004).
While reserves of gold were built up in the mercantilist era in a somewhat
passive way, reserves in these Asian economies were used to buttress their fixed
exchange rate regime. Foreign exchange reserves also serve to hedge against the
relatively massive amount of foreign-held debt in all Asian economies of this time
against dips in confidence. Easy bank loans made available by ‘relationship
banking’ and the government-guided 3B trilogy of bureaucrats, bankers and
businessmen (Choi, 2000) facilitated the evolution of the huge debt to equity ratios
of financial institutions. Large US dollar and other international reserves are also
seen as a sign of economic power.
‘All Fall Down’ - The End of the Asian Miracle (Krugman, 2000)
Many commentators believed that the Asian financial crisis of 1997
signalled the end of the Asian miracle. The Asian crisis began on the 2nd July 1997,
when the Thai government devalued the Baht in response to overwhelming
speculative pressure. What followed was a spate of attacks on the currencies of the
region. Indonesia, Korea, Malaysia and to a lesser extent the Philippines, Taiwan,
Singapore and Hong Kong all fell victim to the so-called Asian flu. Thailand’s
currency depreciated by half, Korea’s by 20%, Malaysia’s by 30%. Only Hong
Kong was able to maintain its exchange rate. The stock markets of the region also
came under attack with investors pulling their money out en masse. The Thai stock
exchange lost 90% of its value by the end of 1997, while Indonesia lost 85%, Korea
80% and Singapore 60%. The collapse was not just confined to the financial world;
204
MERCANTILISM AND THE ASIAN DEVELOPMENT MODEL
real economic activity was hit hard. Indonesia’s economy contracted by 13.7% in
1998, Thailand’s by 10% and Hong Kong, Korea and Malaysia each saw
contractions of between 5 and 7.5%. There was a massive increase in unemployment,
the rate more than tripling for Thailand, Indonesia and Korea in the two years from
1996.
There are two competing views on where the fault of the Asian financial
crisis lies. The first of these is that the model of Asian development itself was to
blame for the crisis. Asian capitalism (or crony capitalism) is based on the symbiotic
relationship between government, banks and industry. As Krugman (2000) suggests
in his usual cutting fashion, “Many Westerners have turned the story of Asia’s crash
into a sort of morality play, in which the economies received their inevitable
punishment for the sins of crony capitalism.” Proponents of this view argue that
many of the same factors, which underpinned Asia’s extraordinary economic growth,
were also the source of its weakness; policy directed lending, the close ties between
corporations, governments and financial institutions, fixed exchange rates, and the
general control of market forces.
The opposing view is the failure of Western capitalism or a market-failure
view. This perspective, vehemently argued in Radelet and Sachs (1998), Wade
(1998) and Wade and Veneroso (1998), places the Asian development model in the
context of its own tradition. The Asian model of financial intermediation,
characterised by close relationships between government, the banking sector and
industry, had played a major role in the impressive growth of the Asian economies.
While this system had operated effectively in an era of restricted capital movements,
supporters of this latter view of the crisis hold that it was the unrestricted inflows of
foreign capital following capital liberalisation in this region, prompted by the
International Monetary Fund (IMF) and Western powers that upset this symbiotic
system and caused it to unsettle the equilibrium in place (Dean, 2000)
While Asian officials proclaimed the soundness of the economic
fundamentals on which their systems were based, they failed to recognise that they
were assuming that the separation of economics and politics was straightforward.
Investment, capital flows and growth are part of the economic sphere and Asia
performed well in this sphere. However, regulation supervision, transparency and a
sense of balance between dynamic growth and system stability can only be
generated in the intertwined political sphere, in which Asian nations failed miserably.
This view is reinforced by Sopiee (1996), who observes that, “The tiger economies
of East Asia have been first rate in the management of the economic fundamentals in
the real economy. They have been second rate in the management of market
fundamentals.”
Cerra and Saxena (2003) in an IMF survey said “the recovery phase (in
Asia) is predominantly characterized by a return to the normal growth rate rather
EIMEAR SEXTON
205
than a higher-than-normal growth rate”. If it is the case that such economies are
growing once more, notwithstanding the fact that such growth is from a lower base,
a case can be made in line with the market-failure view that it was not the
mercantilistic-type policies used by Asian economies in the 1960s through the 1990s
that caused the financial crisis of 1997 and consequently such policies have not yet
been rendered redundant as effective tools for the facilitation of economic growth
and development.
Conclusion
“…Mercantilism… was intended to promote production and commerce of
private entrepreneurs who benefited from and contributed to the consolidation,
prosperity and power of nation-states, with foreign trade being the most strategic
variable.”
(Palgrave, 1976)
Palgrave’s definition, while it refers to a period of economic thought that
‘ended’ more than two hundred years ago, could easily describe the economic
policies and motivations of twentieth century Asia. Yusuke, chief economist of the
Institute of International Finance and former Asia expert at the IMF, noted a “deeply
rooted mercantilist instinct” in Asia “with an almost religious attachment to trade
and current account surpluses” as well as a tendency much greater than other
countries to hold foreign reserves.
Together the Central Banks of Japan, China, Hong Kong, Taiwan and
South Korea hold around $1.3 trillion in official reserves (or over half the global
total). Their desire to accumulate such a stockpile of dollars is twofold. It is fuelled
by their desire to hold enough reserves to insulate them from a financial crisis like
that of 1997 and their wish to keep their currencies from appreciating. The dollar has
depreciated significantly in 2002 and 2003. Correspondingly, Japan’s reserves have
increased by 36%, China’s by 65% and Taiwan’s by 49% over the period (The
Economist, 2003).
Another effect of Asian intervention in soaking up excess dollars to support
their exchange rates has been that their export prices have been kept down, arguably
an orchestrated effect, leading to yet more of the export-led growth it has become
renowned for. Exports now account for 64% of the region’s GDP, having increased
from 55% in the early 1990s, before the crisis (The Economist, 2003). This
impressive export performance has concomitantly led to substantial current account
surpluses. The combined current account surplus of Japan, China, Eastern and South
Eastern economies of Asia was $133 billion in 2002.
206
MERCANTILISM AND THE ASIAN DEVELOPMENT MODEL
It is my view based on the above evidence that mercantilist policies are still
being used at present in Asian countries. I believe that the financial crisis in 1997
was a consequence of an amalgamation of financial regimes that were not in sync, a
market failure rather than a government failure. Although economic fundamentals
were somewhat to blame, the extent of the damage caused by the crisis was probably
unjustified by the afflicted economies’ crimes. Despite the crisis, the Asian
economies have shown signs of a remarkable recovery, suggesting that the economic
fundamentals on which their regimes were based were different to those of the
Western model but not necessarily unsound. Moreover, their growth since the crisis
has taken place within a much more sustainable market framework i.e. in a market
where much capital liberalisation has taken place. While markets are not fully
liberalised – China, the most notable proponent of market restrictions, still has its
currency, the Yuan, fixed to the Dollar.7 They are now a great deal closer to the
norm of industrialised Western countries.
Despite the Asian financial crisis of 1997 and its aftermath, it is clear that
many of the tenets of the Asian development model in particular, its mercantilistic
policies of a strong nation state, export-led growth, trade and current account
surpluses – are valid policy prescriptions for other emerging economies. What it less
clear is how countries should proceed, regarding capital account liberalisation and
their choice of exchange rate regime.
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